2017-2018

REPRESENTATIVES EDCEL C. LAGMAN, et al. v. HON. SALVADOR C. MEDIALDEA,

EXECUTIVE SECRETARY, et al.
G.R. No. 231658, 04 July 2017, EN BANC (Del Castillo, J.)

DOCTRINE OF THE CASE

It is difficult, if not impossible, to fix the territorial scope of martial law in direct proportion to the "range" of actual
rebellion and public safety simply because rebellion and public safety have no fixed physical dimensions. Their transitory and
abstract nature defies precise measurements; hence, the determination of the territorial scope of martial law could only be drawn
from arbitrary, not fixed, variables. The Constitution must have considered these limitations when it granted the President wide
leeway and flexibility in determining the territorial scope of martial law. Moreover, the President's duty to maintain peace and
public safety is not limited only to the place where there is actual rebellion; it extends to other areas where the present hostilities
are in danger of spilling over. It is not intended merely to prevent the escape of lawless elements from Marawi City, but also to
avoid enemy reinforcements and to cut their supply lines coming from different parts of Mindanao. Thus, limiting the
proclamation and/or suspension to the place where there is actual rebellion would not only defeat the purpose of declaring martial
law, it will make the exercise thereof ineffective and useless.

FACTS:

Effective May 23, 2017, and for a period not exceeding 60 days, President Rodrigo Roa Duterte
issued Proclamation No. 216 declaring a state of martial law and suspending the privilege of the writ of
habeas corpus in the whole of Mindanao.

Within the timeline set by Section 18, Article VII of the Constitution, the President submitted to
Congress on May 25, 2017, a written Report on the factual basis of Proclamation No. 216. The Report
pointed out that for decades, Mindanao has been plagued with rebellion and lawless violence which only
escalated and worsened with the passing of time. The Report also highlighted the strategic location of Marawi
City and the crucial and significant role it plays in Mindanao, and the Philippines as a whole. In addition, the
Report pointed out the possible tragic repercussions once Marawi City falls under the control of the lawless
groups.

After the submission of the Report and the briefings, the Senate issued a resolution expressing full
support to the martial law proclamation and finding Proclamation No. 216 to be satisfactory, constitutional
and in accordance with the law. In the same Resolution, the Senate declared that it found no compelling
reason to revoke the same. The House of Representatives likewise issued a resolution expressing its full
support to the President, as it finds no reason to revoke Proclamation No. 216.

Invoking the third paragraph of Section 18, Article VII of the Constitution, various citizens filed
several petitions, essentially invoking the Courts specific and special jurisdiction to review the sufficiency of
the factual basis of Proclamation No. 216; and seeking to nullify Proclamation No. 216 for being
unconstitutional because it lacks sufficient factual basis.

ISSUES:

1. Are the instant petitions the "appropriate proceeding" covered by Paragraph 3, Section 18, Article
VII of the Constitution?

2. Is the President, in declaring martial law and suspending the privilege of the writ of habeas corpus,:
a. required to be factually correct or only not arbitrary in his appreciation of facts;
b. required to obtain the favorable recommendation thereon of the Secretary of National
Defense; or
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c. required to take into account only the situation at the time of the proclamation, even if
subsequent events prove the situation to have not been accurately reported?

3. Is the power of the Court to review the sufficiency of the factual basis of the proclamation of martial
law or the suspension of the privilege of the writ of habeas corpus independent of the actual actions
that have been taken by Congress jointly or separately?

4. Were there sufficient factual basis for the proclamation of martial law or the suspension of the
privilege of the writ of habeas corpus?
a. What are the parameters for review?
b. Who has the burden of proof?
c. What is the threshold of evidence?

5. Is the exercise of the power of judicial review by the Court involves the calibration of graduated
powers granted the President as Commander-in-Chief?

6. May Proclamation No. 216 be considered, vague, and thus null and void:

a. with its inclusion of other rebel groups; or

b. since it has no guidelines specifying its actual operational parameters within the entire Mindanao
region?

7. Are the armed hostilities mentioned in Proclamation No. 216 and in the Report of the President to
Congress sufficient bases;
a. for the existence of actual rebellion; or
b. for a declaration of martial law or the suspension of the privilege of the writ of habeas corpus in
the entire Mindanao region?

8. Are terrorism or acts attributable to terrorism equivalent to actual rebellion and the requirements of
public safety sufficient to declare martial law or suspend the privilege of the writ of habeas corpus?

9. Will nullifying Proclamation No. 216:

a. have the effect of recalling Proclamation No. 55 s. 2016; or
b. also nullify the acts of the President in calling out the armed forces to quell lawless violence in
Marawi and other parts of the Mindanao region?

RULING:

1. YES. The unique features of the third paragraph of Section 18, Article VII clearly indicate that it should
be treated as sui generis separate and different from those enumerated in Article VIII.

Under the third paragraph of Section 18, Article VII, a petition filed pursuant therewith will follow a
different rule on standing as any citizen may file it. Said provision of the Constitution also limits the issue
to the sufficiency of the factual basis of the exercise by the Chief Executive of his emergency powers.
The usual period for filing pleadings in Petition for Certiorari pursuant to Section 1 or Section 5 of
Article VIII is likewise not applicable under the third paragraph of Section 18, Article VII considering the
limited period within which the Court has to promulgate its decision.

In fine, the phrase in an appropriate proceeding: appearing on the third paragraph of Section 18,
Article VII refers to any action initiated by a citizen for the purpose of questioning the sufficiency of the
factual basis of the exercise of the Chief Executive's emergency powers, as in these cases. It could be
denominated as a complaint, a petition, or a matter to be resolved by the Court.
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2.
a. NO. In determining the sufficiency of the factual basis of the declaration and/or the suspension,
the Court should look into the full complement or totality of the factual basis, and not piecemeal
or individually. Neither should the Court expect absolute correctness of the facts stated in the
proclamation and in the written Report as the President could not be expected to verify the
accuracy and veracity of all facts reported to him due to the urgency of the situation.

To require precision in the President's appreciation of facts would unduly burden him and
therefore impede the process of his decision-making. Such a requirement will practically
necessitate the President to be on the ground to confirm the correctness of the reports
submitted to him within a period that only the circumstances obtaining would be able to dictate.

b. NO. Even the recommendation of, or consultation with, the Secretary of National Defense, or
other high-ranking military officials, is not a condition for the President to declare martial law.

A plain reading of Section 18, Article VII of the Constitution shows that the President's
power to declare martial law is not subject to any condition except for the requirements of actual
invasion or rebellion and that public safety requires it. Besides, it would be contrary to common
sense if the decision of the President is made dependent on the recommendation of his mere
alter ego. Rightly so, it is only on the President and no other that the exercise of the powers of
the Commander-in-Chief under Section 18, Article VII of the Constitution is bestowed.

c. YES. Since the exercise of these powers is a judgment call of the President, the determination of
the Court as to whether there is sufficient factual basis for the exercise of the power to declare
martial law and/or suspend the privilege of the writ of habeas corpus, must be based only on
facts or information known by or available to the President at the time he made the declaration
or suspension which facts or information are found in the proclamation as well as the written
Report submitted by him to Congress. These may be based on the situation existing at the time
the declaration was made or past events. As to how far the past events should be from the
present depends on the President.

Similarly, events that happened after the issuance of the proclamation, which are included in
the written report, cannot be considered in determining the sufficiency of the factual basis of the
declaration of martial law and/or the suspension of the privilege of the writ of habeas corpus
since these happened after the President had already issued the proclamation. If at all, they may
be used only as tools, guides or reference in the Court's determination of the sufficiency of
factual basis, but not as part or component of the portfolio of the factual basis itself.

3. YES. The Court may strike down the presidential proclamation in an appropriate proceeding filed by
any citizen on the ground of lack sufficient factual basis. On the other hand, Congress may revoke
the proclamation or suspension, which revocation shall not be set aside by the President.

In reviewing the sufficiency of the factual basis of the proclamation or suspension, the Court
considers only the information and data available to the President prior to, or at the time of the
declaration; it is not allowed to undertake an independent investigation beyond the pleadings. On
the other hand, Congress may take into consideration not only data available prior to, but likewise
events supervening the declaration. Unlike the Court which does not look into the absolute
correctness of the factual basis as will be discussed below, Congress could probe deeper and further;
it can delve into the accuracy of the facts presented before it.
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In addition, the Court's review power is passive; it is only initiated by the filing of a petition
"in an appropriate proceeding" by a citizen. On the other hand, Congress' review mechanism is
automatic in the sense that it may be activated by Congress itself at any time after the proclamation
or suspension was made.

Thus, the power to review by the Court and the power to revoke by Congress are not only
totally different but likewise independent from each other although concededly, they have the same
trajectory, which is, the nullification of the presidential proclamation. Needless to say, the power of
the Court to review can be exercised independently from the power of revocation of Congress.

4. YES. The President deduced from the facts available to him that there was an armed public uprising,
the culpable purpose of which was to remove from the allegiance to the Philippine Government a
portion of its territory and to deprive the Chief Executive of any of his powers and prerogative,
leading the President to believe that there was probable cause that the crime of rebellion was and is
being committed and that public safety requires the imposition of martial law and suspension of the
privilege of the writ of habeas corpus.

a. Section 18, Article VII itself sets the parameters for determining the sufficiency of the factual
basis for the declaration of martial law and/or the suspension of the privilege of the writ of
habeas corpus, "namely (1) actual invasion or rebellion, and (2) public safety requires the exercise
of such power."170 Without the concurrence of the two conditions, the President's declaration
of martial law and/or suspension of the privilege of the writ of habeas corpus must be struck
down.

A review of the aforesaid facts similarly leads the Court to conclude that the President, in
issuing Proclamation No. 216, had sufficient factual ' bases tending to show that actual rebellion
exists. The President's conclusion, that there was an armed public uprising, the culpable purpose
of which was the removal from the allegiance of the Philippine Government a portion of its
territory and the deprivation of the President from performing his powers and prerogatives, was
reached after a tactical consideration of the facts. In fine, the President satisfactorily discharged
his burden of proof.

b. After all, what the President needs to satisfy is only the standard of probable cause for a valid
declaration of martial law and suspension of the privilege of the writ of habeas corpus.

c. What the President needs to satisfy is only the standard of probable cause for a valid declaration
of martial law and suspension of the privilege of the writ of habeas corpus.

5. NO. The power of judicial review does not extend to calibrating the President's decision pertaining
to which extraordinary power to avail given a set of facts or conditions. To do so would be
tantamount to an incursion into the exclusive domain of the Executive and an infringement on the
prerogative that solely, at least initially, lies with the President.

6.

a. NO. The term "other rebel groups" in Proclamation No. 216 is not at all vague when viewed in
the context of the words that accompany it. Verily, the text of Proclamation No. 216 refers to
"other rebel groups" found in Proclamation No. 55, which it cited by way of reference in its
Whereas clauses.

b. NO. There is no need for the Court to determine the constitutionality of the implementing
and/or operational guidelines, general orders, arrest orders and other orders issued after the
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proclamation for being irrelevant to its review. Thus, any act committed under the said orders in
violation of the Constitution and the laws, such as criminal acts or human rights violations,
should be resolved in a separate proceeding. Finally, there is a risk that if the Court wades into
these areas, it would be deemed a trespassing into the sphere that is reserved exclusively for
Congress in the exercise of its power to revoke.

7. YES. A review of the facts available to the President that there was an armed public uprising, the
culpable purpose of which was to remove from the allegiance to the Philippine Government a
portion of its territory and to deprive the Chief Executive of any of his power and prerogatives
leading to President to believe that there was probable cause that the crime of rebellion was and is
being committed and that public safety requires the imposition of martial law and suspension of the
privilege of the writ of habeas corpus. The President, in issuing Proclamation No. 216, had sufficient
factual bases tending to show that actual rebellion exists. The Presidents conclusion was reached
after a tactical consideration of the facts. In fine, the President satisfactorily discharged his burden of
proof. After all, what the President needs to satisfy is only the standard of probable cause for a valid
declaration of martial law and suspension of the privilege of the writ of habeas corpus.

8. YES. For a declaration of martial law or suspension of the privilege of the writ of habeas corpus to
be valid, there must be concurrence of actual rebellion or invasion and the public safety requirement.
In his report, the President noted that the acts of violence perpetrated by the ASG and the Maute
Group were directed not only against government forces or establishment but likewise against
civilians and their properties. In addition and in relation to the armed hostilities, bomb threats were
issued, road blockades and checkpoints were set up, schools and churches were burned, civilian
hostages were taken and killed, non-Muslim or Christians were targeted, young male Muslims were
forced to join their group, medical services and delivery of basic services were hampered,
reinforcement of government troops and civilian movement were hindered, and the security of the
entire Mindanao Islands was compromised. Based on the foregoing, Proclamation No. 216 has
sufficient factual basis there being probable cause to believe that rebellion exists and that public
safety requires the martial law declaration and the suspension of the writ of habeas corpus.

9.

a. NO. The calling out power is in a different category from the power to declare martial law and
the power to suspend the privilege of the writ of habeas corpus. The Courts declaration of a
state of national emergency on account of lawless violence in Mindanao through Proclamation
No. 55 dated September 4, 2016 where he called upon the Armed Forces and the Philippine
National Police (PNP) to undertake such measures to suppress any and all forms of lawless
violence from spreading and escalating elsewhere in the Philippines.

The Presidents calling out power is in a different category from the power to suspend the
writ of habeas corpus and the power to declare martial law. In other words, the President may
exercise the power to call out the Armed Forces independently of the power to suspend the
privilege of the writ of habeas corpus and to declare martial law, although, of course, it may also
be precluded to a possible future exercise of the latter powers, as in this case.

b. NO. Under the operative fact doctrine, the unconstitutional statute is recognized as an
operative fact before it is declared unconstitutional. The actual existence of a statute prior to
such a determination of constitutionality is an operative fact that may have consequence which
cannot always be erased by a new judicial declaration. The effect of the subsequent ruling as to
the invalidy may have to be considered in various aspects- with respect to particular regulations,
individual and corporate and particular conduct, private and official.
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Court Ruling on Martial law on Whole of Mindanao

We revert back to the premise that the discretion to determine the territorial scope of martial law lies
with the President. The Constitution grants him the prerogative whether to put the entire Philippines or any
part thereof under martial law. There is no constitutional edict that martial law should be confined only in the
particular place where the armed public uprising actually transpired. This is not only practical but also logical.
Martial law is an urgent measure since at stake is the nation's territorial sovereignty and survival. As such, the
President has to respond quickly. After the rebellion in the Court's compound, he need not wait for another
rebellion to be mounted in Quezon City before he could impose martial law thereat. If that is the case, then
the President would have to wait until every remote corner in the country is infested with rebels before he
could declare martial law in the entire Philippines. For sure, this is not the scenario envisioned by the
Constitution.

Going back to the illustration above, although the President is not required to impose martial law
only within the Court's compound because it is where the armed public uprising actually transpired, he may
do so if he sees fit. At the same time, however, he is not precluded from expanding the coverage of martial
law beyond the Court's compound. After all, rebellion is not confined within predetermined bounds.

It is difficult, if not impossible, to fix the territorial scope of martial law in direct proportion to the
"range" of actual rebellion and public safety simply because rebellion and public safety have no fixed physical
dimensions. Their transitory and abstract nature defies precise measurements; hence, the determination of the
territorial scope of martial law could only be drawn from arbitrary, not fixed, variables. The Constitution
must have considered these limitations when it granted the President wide leeway and flexibility in
determining the territorial scope of martial law. Moreover, the President's duty to maintain peace and public
safety is not limited only to the place where there is actual rebellion; it extends to other areas where the
present hostilities are in danger of spilling over. It is not intended merely to prevent the escape of lawless
elements from Marawi City, but also to avoid enemy reinforcements and to cut their supply lines coming
from different parts of Mindanao. Thus, limiting the proclamation and/or suspension to the place where
there is actual rebellion would not only defeat the purpose of declaring martial law, it will make the exercise
thereof ineffective and useless.

x x x Marawi lies in the heart of Mindanao. In fact, the Kilometer Zero marker in Mindanao is found
in Marawi City thereby making Marawi City the point of reference of all roads in Mindanao.
Thus, there is reasonable basis to believe that Marawi is only the staging point of the rebellion, both for
symbolic and strategic reasons. Marawi may not be the target but the whole of Mindanao. As mentioned in
the Report, "[l]awless armed groups have historically used provinces adjoining Marawi City as escape routes,
supply lines, and backdoor passages;" there is also the plan to establish a wilayat in Mindanao by staging the
siege of Marawi. The report that prior to May 23, 2017, Abdullah Maute had already dispatched some of his
men to various places in Mindanao, such as Marawi, Iligan, and Cagayan de Oro for bombing operations,
carnapping, and the murder of military and police personnel, must also be considered. Indeed, there is some
semblance of truth to the contention that Marawi is only the start, and Mindanao the end.

x x x Verily, the Court upholds the validity of the declaration of martial law and suspension of the
privilege of the writ of habeas corpus in the entire Mindanao region.